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Calhoun: The NPS Institutional Archive
Theses and Dissertations Thesis Collection
1967
Coordination of automatic data processing in the
new Department of Transportation.
Schaefer, Thomas P.
George Washington University
http://hdl.handle.net/10945/11871
DUDLEY K 0OLNAVAL POS 33943MONTEREY. CnLirw.
COORDINATION OF AUTOMATIC DATA PROCESSING
IN THE NEW DEPARTMENT OF TRANSPORTATION
By
THOMAS P. SCHAEFERL _J
fi^
COORDINATION Of AUTOMATIC DATA PRCX INO
IN THE NEW DEPARTMENT OF TRANSPORTATION
Thomas Patrick Scnaefer
Bachelor of Science
Coast Guard Academy
1956
A Thesis Submitted to the School of Government andBusiness Administration of the George Washington
University in Partial Fulfillment of the
Requirements for the Degree of
Master of Business Administration
April 1967
Thesis directed by
John W» McCarthy , Jr.
Associate Professor of Business Administration
i
LIBRARYNAVAL POSTGRADUATE SCHOOLMONTEREY, CALIF. 93940
TABLE. OF CONTENTS
PageINTRODUCTION 1
Chapter
I. THE DEPARTMENT OF TRANSPORTATION 4
IL INDIVIDUAL ELEMENTS OF THE DEPARTMENT ... 12
III. COORDINATION OF AUTOMATIC DATAPROCESSING 36
IV. PROGRESS TO DATE 48
V. SUMMARY AND CONCLUSIONS 61
Appendices
A. Transport Responsibilities in the Executive Branchprior to D.O.T 70
B. Additional Lata on ADP Capabilities of
D.O.T. Elements 74
C. Additional Data on ADP Applications of
D.O.T. Elements 75
L. Reports, Studies, Hearings, and legislation
Relating to Coordination of ADP in the FederalGovernment 77
BIBLIOGRAPHY 79
ii
INTRODUCTION
In recent months a Department of Transportation has come into
being in the United States, joining together lor the first time a previously
scattered group of elements and responsibilities. Such an event creates
both problems and opportunities for the participants and coordination
assumes vital importance. This paper discusses the question of co-
ordination of automatic data processing, under the assumption that action
taken in this area will affect most other spheres of activity in the De-
partment.
In chapter I the questions considered are: What is the L epart-
ment of Transportation? V hy was it created? What are its objectives?
Chapter II examines the individual elements of the new iepart-
ment in terms of their size, functions, automatic data processing capa-
bilities and applications.
In chapter III, answers to the questions of how much ADP co-
ordination is required and how much is "right*' are sought from varying
standpoints. Consideration is given to governmental pressures and man-
agement theory, as well as to the attitudes and philosophies of concerned
individuals.
Chapter IV discusses the steps already taken to coordinate ADP
in the Department of Transportation starting before its creation and
1
continuing through February 1967.
The final chapter includes a summary of the characteristics
and objectives of the Department and its elements, the pressures for
coordination of ADP, and personal conclusions and recommendations
for future action.
The chief objectives for undertaking research on this topic
were to learn more about the new Lepartment and to become more
familiar with the field of automatic data processing. Methodology em-
ployed for research was divided nearly equally between reading and
interviewing. Documents and books studied included the legislative his-
tory of the Lepartment of Transportation Act. general literature relating
to ADP and transportation, governmental Hearings and reports concerned
with ADP, and other writings pertinent to the use of computers in large
organizations. One or more persons concerned with ADP applications
in each element entering the new Department were interviewed, as were
representatives of the Bureau of the Budget and the General Services
Administration, from a personal viewpoint, meeting these people and
visiting their offices and ADP installations were probably the most in-
teresting and rewarding phases of the research project.
Due to the current nature of the topic, some of the views ex-
pressed by concernee inoividuals have not been directly attributed to
them. Many thanks are due, however, to all who had the patience ano
frankness to discuss the matter. Credit for much of the management
philosophy expressed herein is morm properly due to the several Pro-
fessors whose courses have related to the subject. Any mistakes or
errors in applying their instruction can only be assigned to the author.
Finally it must be stated that -without the encouragement anc coopera-
tion of my wife and children, this paper could not have been completed.
CHAPTfcit I
THfe DEPARTMENT OF TRANSPORTATION
What is it ? . . . The teo»rtment of Transportation is a new arm
ol the L ^ecutive Branch of the Federal Government oi the United States.
It is the twelfth cabinet level department created since 1789. At incep-
tion it employs more than 94,000 persons, controls about $6 billion in
annual government expenditures, and is responsible for over 120 programs
1
anc activities relating to transportation.
Prior to 1966, the t epartment of Transportation was variously
known as a time-honored proposal, a vitally needed agency, and a potential
threat to the interests of individual segments of the industry. In the Con-
gressional Hearings which preceded its creation, those in favor of the
new Department called it a fresh organizational approach to the com-
plexities of government activity in the transportation field, as well as a
vehicle for increased efficiency and economy. L.ess favorable character-
izations included such phrases as a bureaucratic maze, a conglomeration,
and a reshuffling of government agencies.
1
** Untangling the Nation's Lifelines,** Business v eek, November26, 1966, pp. 111-114.
U. S. Senate, Committee on Government Operations, Hearingson a. 3010- -Establishing a Department of Transportation. Parts I to 4.
89th Cong., 2d Sess., March-June 1966.
To the proponents of the Department who had hoped for oroader
powers and more functions included, the bill which finally passed the
Congress represents half a loaf, but it is at least a first big step in the
direction of coordinated policy and programs. Opposing views appear
time after time in the Hearings from those who would retain separate
organisational machinery for each mode of transportation. One critic
felt that combining aviation with rail, road, and waterway would be
like hitching a race horse, a quarter -horse, a Shetland pony, anda Clydesdale into a team. They are all horses, but they don't
work well as a team and there is little merit in trying to makeone out of them.*
The principal factor which will determine the success or failure
of the team is the people on it. Here lies the most important answer to
the question, ' * vv hat is the L apartment of Transportation?** It is an or-
ganization of people, nearly 100,000 of them, with all the differences in
age, skill, expectations, and other characteristics to be found in any large
organization.
There are young secretaries just out of school and there are
career men with only a year left to retirement. There are working
mothers with sons in college and there are young bachelors with eyes on
the clock and the secretaries. Same personnel in the new Department are
military; roost are civilians. Many are dedicated to the goals of their
U. S. House of Representatives, Committee on Government Opera-tions, Executive and legislative Reorganization Subcommittee. Hearings onCreating a Department of Transportation. Part I., 89th Cong., 2d Seas.,
1966, p. 34S.
agencies; others are just seeking experience before moving on to a more
lucrative job.
This paper is concerned with coordination of Automatic Data
Processing. What must not be lost sight of is that one can seldom ever
coordinate things. One can only attempt to coordinate the actions of
people. Recognizing the differences in people is s vital first step.
why was it creaUto \ . . . The Department of Transportation was
created primarily as an attempt to improve on an existing situation, i.e.,
the lack of coordination in government transportation policy, exemplified
by the scattered responsibility for transportation programs among many
elements of the Executive Branch. The wide dispersion of Federal ac-
tivity in transportation as it existed prior to the Department of Trans-
portation is shown in Appendix A of this paper. In transmitting his pro-
posal for the new Department to the Congress, the President of the United
States saio;
America today lacks a coordinated transportation system that per-mits travelers and goods to move conveniently and efficiently fromone means of transportation to another, using the best character-istics of each.1
The Director of the Bureau of the Budget testified in support of
the proposed change by saying:
Today, transportation responsibilities are widely diffused throughoutthe Government. The lack of central leadership significantly
Dyndon B. Johnson, cited in U.S. Senate iiearings on S. 3 01
J
Part 1., p. 39.
handicaps the development of unified transportation policies anda fully effective execution of Federal transportation programs .1
The belief that the present situation was inadequate did not re-
side solely in the minds of the Administration or the party in power, as
shown by this statement from the Republican members of the House
committee which studied the proposal:
We believe that the need now exists for setting up the machineryto develop a cooruinated and unified approach to transportation
within the free enterprise system in order to attack problems,correct deficiencies* establish oroer. advance the art, anu better
assist the promotion of industry. The plethora of agencies deal-
ing with the various modes and phases of transportation does not
lend itself to a unified approach.
Contrasting the situation in America up to 1966 with that in other
countries, one writer said:
Transport development in the United States is a function of manyagencies, bureaus, and departments and, in particular, there is noone bureau, department, or ministry of transportation. This lack
of a major center of responsibility is almost unique to the United
states; no other major western industrialized country follows this
practice to the same degree.
In his discussion of the pros and cons of creating a cabinet level Depart-
ment of Transportation, Mr. Meyer later said:
Charles SchulUe, cited Ibid., p. 7S.
2Representatives Dvyer, Eeid, Horton, Rumsfeld, Dickinson,
F.rlenborn, Wydler, and Brown, cited in U. S. House of Representatives,
Committee on Government Operations Report No. 1701 on the L apart-
ment of Transportation Act . 89th Cong., 2d aess.. July 15. 1966, p. 61.
aJohn R. Meyer, "Transportation in the Program Budget,**
Program Budgeting, ed. David Novick (Washington: Government Printing
Office. 1964), p. 105.
Perhaps the best argument lor creating such a new departmentis that it could not possibly result in worse coordination of
different federal transportation activities than now occurs. 1
A need for improvement has long existed. Efforts to create a
Department of Trans portation go back many years. Specific legislative
proposals have been offered more than 20 times in the years since
1874. n« specific area in which consolidation of information* exper-
tise, and research efforts was forecast as potentially most beneficial
was that of safety and accident prevention. It was felt that many com-
mon elements exist in accidents involving all modes of transportation.
The similarity of human factors was underscored by Najeeb E. Halaby,
former head of the Federal Aviation Agency and now a Senior Vice
President for Pan American V. or Id Airways:
V. e have right now some of the best studies in the world on the
problem of head injuries due to pilots hitting the dashboard.Well, almost the same forces are involved in a driver hitting
the dashboard of an automobile . *
Another cause for the creation of a Department of Transporta-
tion lies in planning for future needs, as expressed by Senator
Magnuson:
In a scant 35 years, a population nearly tiouble that of today will
need a 21st-century transportation system to move the travelers
XIbid., 128.
2U. S. House Hearings on Creating a Department of Trans porta -
tion. Part 2, pp. 819-824.
3U. S. Senate, Hearings on S. 3010, Part 3., p. 510.
and goooa of a new merica. The Cabinet Secretary of Trans
-
portation can provide leaderabip in the development of a trans-portation system for the expanded needs of America in the
coming century.
The dynamic growth of transportation in the United States was
underscored in the President's message previously mentioned. In the
last 20 years the number of motor vehicles jumped from 31 million to
90 million; aircraft (non -military) increaaed from 38,000 to 97,000.
Cargo movement in America increased from 619 billion ton-miles in
1931 to 1.5 trillion ton-miles in 1964.2
In fiscal year 1966 more than
$5 billion in Federal funds were invested in transportation --in highway
construction, river and harbor development, airway operation, maritime
subsidies, and other functions.
After hearing eleven days of testimony which fills 1200 pages,
the Committee on Government Operations reported to the whole House:
Vie propose, by the creation of a Department of Transportation,
to lay the organizational base for coherent policy and efficient
performance in another large and vitally important area of public
concern- -the movement of people and goods. *
What are its objectives
V
. . . The objectives of the new Depart'
ment can be stated in either grandiose or minimal terms depenoing on
the point of view of the speaker. In the declaration of purpose on page
one of the Department of Transportation Act, the Congress stated
Hbid., Part 1, p. 58.
2Ibid. ( Part 1, p. 38.
U. S. House, Committee Report No. 1701 ., p. 5.
10
objectives in t&is fashion:
To assure the coordinated, eliective administration ol the trans-portation programs of the federal Government; to facilitate the
development and improvement of coordinates transportation serv-ice, to be provided by private enterprise to the maximum extent
feasible; to encourage cooperation of Federal, State, and local
governments, carriers, labor, and other interested parties towardsthe achievement of national transportation objectives; to stimulatetechnological advances in transportation; to provide general leader-ship in the identification and solution of transportation problems;ano to develop and recommend to the President and the Congressfor approval national transportation policies and programs to
accomplish these objectives with full and appropriate considers-tion of the needs of the public, users, carriers, industry, labor,
and the national defense/
Another expansive list of objectives was contained in the
President's message requesting creation of the new Department:
The Department of Transportation will- -coordinate the principal
existing programs that promote transportation in America; bring
new technology to a total transportation system, by promotingresearch ano development in cooperation with private industry;
improve safety in every means of transportation; encourageprivate enterprise to take full and prompt advantage of newtechnological opportunities; encourage high-quality, low -cost
service to the public; conduct systems analyses and planning,
to strengthen the weakest parts of today's system; and developinvestment criteria and standards, and analytical techniques to
assist all levels of government and industry in their trans-portation investments.
More pointed objectives have been suggested by others:
Reduce the multiplicity of reports and statistics by the various
U. S. Public Law 89-67Q--Department of Transportation Act .
H. R. 15963., 89th Cong., 2d Sess., October 15, 1966.
U. S. Senate Hearings on S. 3010. , .-art I., p. 43.
u
segments making up the total transportation system.
Get me to the suburbs as fast as I can get to Chicago . . .
In general terms, the job of the new Department is to solve
the transportation problems of the nation. It is almost an impossible
task. The best that can oe expected is improvement. The Task f orce
which vorked to set up a departmental organisation noted that the
strength of new Department lies in its constituent agencies. The job
of the Secretary and his central staff is to coordinate these individual
agency capabilities into a team effort.
RADM John Harllee. USN (Ket.), Chairman of the federalMaritime Commission, cited in U.S. House Hearings on Creating aDepartment of Transportation. , Part 1., p. 182.
2Man on a bus -stop, a Parker cartoon. The ^ ashin&ton Post,
Feb. 6, 1967, p. A16.
CHAPTER II
INDIVIDUAL ELEMENTS OF THE DEPARTMENT
When i resident Johnson signeu the Department of Transportation
Act on October IS, 1966, he joined together a number of diverse bureaus
and agencies. All perform trana portation -related functions but there is
considerable variation in their other characteristics. This chapter will
summarize the nature and functions of each element, with emphasis
placed on automatic data processing capability and applications. An
effort has been made to keep this discussion free of excessive quanti-
tative data and equipment description. More detail of this type will be
found in Appendix &. Additional details on ADP applications are in-
cluded in Appendix C.
UNDER SECRETARY OF CCMMERC
FOR TRAlv i'AflCN
The office of the Under Secretary had an authorised staff of
147 persons and a budget of about $28 million in fiscal year 1967.*
References for material in this chapter are detailed in the
BIBLIOGRAPHY and include Congressional Hearings, Bureau of the
Budget Inventory of ADP , and a number of personal interviews.
U.S. Senate Hearings on S. 301 U.. ?art 2, p. 174.
12
ii
This element was the principal Executive advisor in all matters relating
to transportation and was charged with general responsibility for foster-
ing, promoting, and developing the nation's transportation facilities.
The incumbent, Hon. Alan ->yti» is now the first Secretary of Trans-
portation. In addition to broad policy cevelopment and supervision of
the staff elements immediately below, the Under Secretary was re-
sponsible in the Commerce Department for the activities of the Mari-
time Administration, Bureau of Public **oads. Great Lakes Pilotage Adminis-
tration, and St. Lawrence Jea-Vv'ay Development Corporation. All of
these elements except the Maritime Administration were transferred
to the new Department.
OFFICE OF TRANSPORTATION POLICY DE.Vt.LvPMfc.Nr. This office
develops over -all transportation policies and plans, identifies major
transportation problems, and proposes research or other acuons. It
uoes not use Automatic Lota Processing services at this time.
OFFICE OF TRANSPORTATION FKGC nother staff element
which will accompany the Under Secretary into the New Department is
the program office which administers the Aviation Y ar Risk insurance
Program and the Aircraft Loan Guarantee c rogram, and helps to co-
ordinate the activities of the line agencies mentioned above. ADP
services are not presently used.
Sworn into office Jan. 16, 1967.
14
OFFICL OP TRANSPORTATION RESEARCH. This office conducts re-
search projects directly or through contract, and furthers research in-
formation to assist in broad policy development. Although not using
ADP services at this time, the use of ADP in the future is anticipated.
OFFICE OF TRANSPORTATION DATA SYSTEMS. The program with
which this office is principally concerned is the collection of statistical
information by transportation carriers. The Acting Director, Mr.
Robert Brown, explained their efforts to achieve similarity and
compatibility between data elements and codes, so as to improve the
meaningfulness of comparisons. Such areas as the geographic coding
of origin-destination data, and the commodity coding of the various
carriers represent major problems. This office utilized the ADP
capability of the Bureau of Census to fill its data processing needs
from the Census of Transportation taken in 1963. Similar arrange-
ments will probably be made for the Transportation Census of grain,
livestock, fruit, minerals, and other items to be taken in 1967. Future
plans include changing the name of this office from Transportation Data
Systems to Transportation Information Planning, which will remove the
erroneous impression that its area of responsibility includes ADP
equipment.
——«i I I I « i » I .» I I i ii in »—»— in n .i n m i n m .i n i i i„ m m i i. n
Interview, January 25, 1967.
Included in the 1963 Census of Transportation were surveys of
Manufactured Commodities, Passenger Transportation, Truck and BusCarrier inventory and usage.
If
OFFICE or EMERGENCY TRANSPORTATION . This office aevelops and
coordinates plana anc policies for centralised control of all modes of
transportation in the event of emergency or mobilization. A chief con-
cern ia the proper allocation of civil transportation capacity to meet
both military and civilian neeos. ADP aervices comprising t> to 10
computer hours per year have been obtained from the office of Emer-
gency Planning computers at the National Research Evaluation Center.
OFFICE, OF HIGH-SPEED GROUND TRANSPORTATION. This office is
responsible for planning and carrying out a program of research,
development, and demonstration for high-speed grounu transportation.
The Transport Systems Planning Division conducts developmental
studies, using ADP services from the National Bureau of Standards
or contracts -with commercial firms. Another element of this office,
the Demonstration Division, is presently using an IBM 1440 12K com-
puter with a Kimball KR 1200 Reader on-line to process and accumu-
late railroad passenger data in the Northeast Corridor. Conductors
on all Pennsylvania and New Haven Railroao trains between W ashington,
D. C. and Boston punch a color -coded ticket for each passenger to show
city of origin and destination and whether coach or first class facilities
were used. Train number and oate are also recorded. As explained by
the Chief of the Division, this information ia supplemented by surveys
Interview with Mr. Robert Haden, 25 January 1967.
16
of travelers and non -travelers taken on trains and in homes.
The specific purpose of this application is to determine the
potential contribution of High-Speed Ground transportation in the Cor-
ridor, by measuring and analyzing public response to present or
1future changes in service. Problems include rough handling of tickets
by passengers which hampers later automatic processing, incorrect
punching by conductors, and lost tickets.
BUR&AU OF PUBLIC KOAl
The Bureau had an authorized staff of 5,755 persons and a bud-
2get of nearly $4.5 billion in fiscal 1967. This huge sum, which will
represent nearly 3/4 of the new Department's expenditure authority, is
almost totally derived from highway -user taxes, such as gasoline and
diesel fuel taxes. The Bureau administers two major highway construc-
tion and development programs in conjunction with State officials. The
Federal -aid to primary and secondary systems program has been in ef-
fect since 1916, with the Federal government paying half the cost of the
nearly 850,000 miles of roads included. Since 1956, the National System
of Interstate and Defense Highways program has been 90 per cent sup-
ported oy federal funds and will comprise 41,000 miles of controlled
-
access highways when completed in 1973.
It appears that this system could be applied to any mode of trans-
portation or geographical area, with minor changes. Cooperation of the
carriers involved would be essential.
2U. S. Senate Hearings on S. 3010. , Part 2, p. 175.
17
other major functions of the Bureau induce highway research,
planning, and safety, oeauhfication has recently assumed greater im-
portance, as has the National driver registration program. Aid to
other nations in developing highway organisations and programs and
assistance in the construction of the Inter -American Highway from the
United States to Panama are also Bureau responsibilities.
At their Washington, L. C« headquarters the Bureau is pres-
ently operating two computer systems in parallel. Being phased out
is an IBM 7010 oOK system with two IBM 1401 auxiliary computers
which are used primarily for input-output to the 7010. The new system
which was installed in December, 1966 consists of an IBM 360 model
50 computer with 26ZK. A wide range of applications is processed which
can be broken down into three areas. Administrative uses include pay-
roll, personnel, accounts, budget, program analysis, and project account-
ing for each Feceral-aid construction project. A second major area,
the National driver registration program, accounts for nearly one thirc
of total computer hours. In this application the Bureau maintains about
two million records on previous driver's license revocations. Any
State desiring to do so may forward names of new applicants for a
driver's license and will receive back information of previous revoca-
tion by any other State.
January 24, 1967. Persons interviewed included Mr. Keith
ftohler, Chief, Computer services Division; Mr. Ken Close, Chief,
Systems and Programming Branch; and Mr. James Ledford, Planning Staff.
18
The thirc general area ol usage comprises engineering and
technical applications, design and research computations, planning,
safety, ant operational programs, right of way and location studies,
and various statistical summaries.
Four regional offices under the Bureau of Public Roads also
utilise computers, principally for engineering and design applications
similar to the third category above. The computer model presently
in use at the San Francisco, Vancouver, and Arlington regional loca-
tions is an IBM 1401 whereas the Denver office uses an IBM 162Q.
UNITED STATU COAST GIMKL
The Coast Guard had an authorized staff of 35,339 military and
5,881 civilians and a budget of just over $500 million in fiscal 1967.
A military service, the Coast Guard maintains readiness for operation
under the Navy in time of war or at the direction of the President.
Peacetime functions include search and rescue services, oceanographic
research, merchant marine safety including licensing of mariners and
inspection of vessel construction and repair, and enforcement of Federal
maritime laws.
The Coast Guard also operates ana maintains a comprehensive
system of aids to navigation for inland and off-shore maritime users,
and for trans -oceanic aircraft. Port security, icebreaking, and ice patrol
U. S. Senate Hearln&s on S. 3010 , Part 2, p. 18u.
19
services are also provided.
The Coast Guard operates three computers in the Washington,
D. C. area at present. The smallest, a Control Data Corporation PDP-5
paper tape unit, is used in conjunction with a radio -teletype network
to process oceanographic observation oata recorder by Coast Guard
vessels and forwarded by message. In one application, corrected
readings are reported to the Navy fleet Weather Center, Monterey,
1within 12 hours from the time oi original recording at sea. A markeo
increase in the numoer of oceanographic observations and potential ap-
plications in this rapidly growing field suggests a need for greater ADP
capability
.
The administrative data processing at Coast Guard Headquarters
is performed on an IBM 1410, 40K system. Applications include person-
nel accounting (military, civilian, reserve, and retired), payroll, finan-
cial and property accounting, program budget, and various statistical
applications in such fields as search and rescue, motor boat accidents,
Zmerchant vessel casualty cases, and field unit operations.
An IBM 1130 computer with 8K word memory is used by Coast
Guard engineers for such design and computational applications as
Interview with CDR. R. Linn more. Commanding Officer, CoastGuard Oceanographic Unit; and IXDR K. Palfrey of his staff on January25. 1967.
^Interviews with CDR. C. Unsixm, Chief Data Processing Division
USCG on January 18, 19 and February 1, 1967.
10
spectrum analyses for LORAN -C (a long range electronic navigational
aid); candle power and signal light intensity analyses; buoy design; time-
difference, base "line ana azimuth calculations (also for lOKAN-C), and
similar programs. A recent application with apparent potential for
other users is a Monte Carlo model for simulating helicopter engine
operation.
Since 19 ;>8, the Coast Guard has operated a computer-based
merchant vessel reporting system (AMVJLR) which provides the current
position of vessels and other vital information for use in search and
rescue cases. Coverage was expanded in 1965 to include the Pacific
Ccean as well as the 'tlantic. The computer presently used with this
system is an IBM 1401 with UK located in New York City. An IBM
Ih&d model, used only for educational purposes, is located at the Coast
Guard Academy in New Condon, Connecticut. The Coast Guard Yard,
a vessel repair facility located at Curtis Bay, Maryland, uses an IBM
14U1, 4K system for engineering and administrative purposes. In
^lizabeth City, North Carolina, applications relating to aircraft main-
tenance as well as administration are performed on the IBM 1440 at
the Aircraft Repair and Supply Center. A supply -oriented Honeywell 120
system will be installed at the Coast Guard Supply Center Brooklyn,
Interviews with FNS's Wegner and DeChamps, EngineeringDivision, Coast Guard Headquarters on January 19, 1967.
21
New York, in December 1967. AM punched card systems are used for
administrative functions in the twelve Coast Guard District offices lo-
cated throughout the United States, including Hawaii and Alaska.
FEDERAL AVIATION AGENCYi —ii i n iii i« -!—. —— M iiMiiwi-ii 'W tmm
The Federal Aviation Agency had an authorized staff of 44,232
2persons and a budget of just over $1 billion in fiscal 1967. Tasks in-
clude promoting and developing air commerce and civil aviation; regu-
lation and control of air space; research and development in a variety
of air related fields; registration of aircraft; examination of pilots;
and furnishing technical assistance to other countries. Facilities
operated by the FAA include Dulles International and Washington Na-
tional Airports; control towers at more than 250 other airports; twenty
air route traffic control centers; and a number of flight service stations
and air navigational aids.
In addition to responsibility for the supersonic transport (SST)
program, FAA is active in the vertical takeoff and the short takeoff
and landing (VTOL and STOL) programs. Under development is an
all-weather landing system which will permit airport operations under
^——— i ! ! i w>i w^^*i^^^wM^ , |in ii mi ' ' wi i — — ——w — mm mm mwrn* n *'n»i" ""www—tw>—»*—>€ w i wii mum iwtw»
1
Interview with LCDK J. Morrow, Chief, Management SciencesBranch, Coast Guard Headquarters on January 19, 1967.
2U.S. Senate Hearings on 3. 3010.. Part 2, p. 179.
U. S. Federal Aviation Agency, The jEetieral Aviation Agency ,
September, 1964, pp. 1-20.
22
zero visibility conditions. Extensive use of Automatic Data Processing
in both research and operational programs characterizes this agency.
Administrative processing at the V, ashington, D. C. headquarters
is performed on an IBM 1401, 16K computer scheduled for replacement
by an IBM 360 model 30, 32K system in May 1967. Applications include
facility record maintenance, payroll, general accounting, cost accounting,
personnel, property inventory, and the civil notice to airman (NOTAM)
system. A military NOTAM system presently operated by an Air Force
detachment in the FAA headquarters is scheduled to be combined with
2the civil system. Both convey information to pilots and other inter-
ested parties concerning condition of radio aids, airports, and lights.
FAA Regional Offices at Anchorage, Honolulu, Los Angeles,
Fort Afcorth, Kansas City, Atlanta, and Jamaica, New York utilize IBM
1401 card -oriented computers for business and administrative purposes.
Applications include payroll, general and cost accounting, and FAA air-
craft and facility record maintenance.
The FAA Aeronautical Center in Oklahoma City is the principal
supply, training, equipment repair, and record -keeping facility for the
agency. Computers presently used include IBM 7040, 1401, and 360
model 30 systems. Applications include maintenance of central files
for pilot licenses and medical records, aircraft registrations, and other
Interview with T. Grieg, Computer Operations Branch, Jan. 23, 1967.
interview with Sgt. W. Braddock, USAF, Jan. 23, 1967.
23
aviation information systems as wall as payroll, accounting, supply, in-
ventory, ana property records.
The National Aviation Facilities Experimental Center (NAFFC)
in Atlantic City, New Jersey conducts a major portion ol the research,
development, testing, and design work performed by the FAA. Some ad*
ministrative work is processed on an IBM 1401 ccomputer, but the large
scale IBM 7090 system Is mainly used for simulations and other ex-
perimental projects in such areas as air traffic control and all-weather
landing systems. NAFFC Is also the site of the first of twenty IBM
9020 systems which will be installed in air route traffic control centers
around the country in the next few years. This air traffic control sys-
tem represents the largest computer application in terms of cost and
capability coming into the Department of Transportation and is dis-
cussed in more detail below.
Air traffic controllers at each of the route centers and airport
towers use flight plan inputs, weather data, radar presentations, and other
inputs to control the movement and spacing of aircraft in their sectors
and to pass each flight to the next sector at the appropriate time. The
multitude of variables and calculations required in this 24 hour 365 day
a year operation create a need for reliable automated systems. UNIVAC
File computers are presently used in the air route traffic control
Persons interviewed with respect to general purpose systemsinclude J. Rickard, M. Francis, and L. Yarnell at FAA HQ, January23, 1967.
24
centers (ARTCC's) in Nashua, New Hampshire; Gberlin, Ohio; Indian-
apolis, Indiana; and Lees burg, Virginia. The ARTCC in Ronkonkoma,
New York has an IBM 1410 and an IBM 1401 installed. The 5ACE
facility at Great Falls, Montana performs double duty as an ARTCC
and an Air Defense Command center.
Each of the twenty new IBM 9020 systems being phased in will
cost from $12 to $15 million depending on the specific configuration
and amount of memory required at the individual ARTCC. In addition
to assisting human controllers by computing safe routes, spacing, and
other information for each flight on a continuous, future basis, the sys-
tem will have the capability of placing an electronic tag next to each
radar target on the controller's scope, telling him the plane's flight
number, altitude, and whether it is climbing or descending. The 9020
systems are of modular construction with physically separate storage,
computing, and control elements in the central processor. Multiples
of each element are provided which can be joined in any desired combi-
nation. This is called a "fail safe, fail soft'* system by the Federal
Aviation Agency. The second of the IBM 9020 systems was recently in-
stalled at the ARTCC in Jacksonville, Florida where it is currently
2going through the test phase. Central programming for all 9020
1
Interview with I_t. Col. A. B. Cowart, USAF, presently assignedwith FAA in Configuration Mgt. Branch on January 30, 1967.
2Interview with Mr. J. R. Seitz, Chief Test Branch, National Air-
space System Program Office of FAA on January 30, 1967.
computers will be performed at the NAFEC facility in Atlantic City,
r uture plans call for extension of the system to major terminals as
well as ARTCC's. There is also a possibility that the standby capa-
city of the 9020 computers can be used to take over some of the ad-
ministrative data processing for FAA.
BUREAU OF RAIjLRQAD SAFETY AND SERVICE.
and
BUREAU OF OPERATIONS AND COMPLIANCE,
These segments of the Interstate Commerce Commission had a
staff of 497 persons and a budget of about $6 million in fiscal 1967
.
Functions transferred to the new Department of Transportation include
preparation and administration of safety regulations for railroad trains,
locomotives, motor vehicle carriers (bus and truck), and pipelines (ex-
cept natural gas.) In addition to inspecting carrier equipment, opera-
tions, and records and investigating serious accidents, these offices
receive carrier reports and publish various statistical bulletins. The
safe packing and transportation of dangerous articles and explosives
come within the responsibility of this element.
Computer programs are presently utilized by one section in
each Bureau and are currently processed on the Interstate Commerce
— i i n i in——— 1
1
» ii i »— ip — . i» .I. ——— i i
U. S. Senate Hearings on S. 3010., part 2, p. 183.
26
Commission's RCA 301, 20K computer located in the V ashington, D. C.
headquarters building. Most relate to rail accidents and motor carrier
accidents and the input data is taken from carrier reports and records
ol investigation. Another set of programs relates to equipment inspec-
tions. Since most of the programs are written in KPG language for
the RCA 301 and are not compatible with the IBM equipment of the other
elements coming in to the Department of Transportation, special ar-
rangements or reprogramming will be required.
GkLAT LAKES PILOTAGE ADMINIS fRATION
The Great Lakes Pilotage Administration had an authorized staff
of six persons and a budget of about $97 thousand in fiscal 1967. Func-
tions include regulation of pilotage on the Great Lakes, establishing rates
and charges for pilot service, and registration of Lake pilots. The Ad-
ministration acts jointly with its Canadian counterpart in establishing
standards and rates. No automatic data processing services are cur-
rently used by this element.
SAINT LAWRfcNCE SEAWAY DEVELOPMENT CORPORATION
The Saint Lawrence Seaway Development Corporation had an
authorized staff of 162 persons and a capital value --net worth of just
3over $118 million in fiscal 1967. The Corporation operates on a
Interview with C. Greene of ICC Program Staff, Jan. 25. 1967.
2U. 3. Senate Hearings on S. 3010. , Part 2, p. 178.
3Ibid., p. 177.
27
sell-supporting revolving fund basis utilising tolls as a chief source of
revenue to defray cost. In addition to operation and maintenance of the
Seaway, necessary dredging and construction work is performed jointly
by the Corporation and the Saint Lawrence Authority of Canada. This
latter agency currently provides automatic data processing services to
the Corporation in the areas of statistical data and billings, on a re-
imbursable basis.
BUftLAU O* SAFLTY OF THE- CIVIL AERONAUTICS BOARD
fne Bureau of Safety of the CAB had an author ed staff of
186 persons and a budget of nearly $3.5 million in fiscal 1967. Func-
tions include investigating all fatal accidents involving civil aircraft;
recommending probable cause for all accidents (including those non-
fatal fixed wing accidents investigated by the Federal Aviation Agency);
publishing reports on accidents and causes; and making analyses and
recommendations toward reduction of future accidents.
Although the Bureau of Safety has no ADP equipment of its own,
it has made extensive use of the IBM 360 model 30, 64K system which
services all elements of the Civil Aeronautics Board. The Analysis
Division of the Bureau of Safety prepares a data sheet for every aircraft
lU. S. Senate Hearinas on S. 3010. , Part 2, p. 182.
Interviews with Mr. A. Goldman, Chief of Information Serviceand Program Section and Mr. F. Hollowell, Chief of Analysis Division,
Civil Aeronautics Board on Jan. 30, 1967.
28
accident* which is then transformed into punched cards and magnetic
tape. Through a series of computer programs this historical file can
be used a number of ways. Finding similarities in accident charac-
teristics, as an aid to analyzing causes, is one important application.
It is also used to prepare reports and summaries for in-house and
public use.
Additional ADP applications in the Bureau of Safety are pres-
ently limited to two FORTRAN programs used by the Engineering
Division to obtain information from a plane's Flight Recorder. If this
instrument is salvaged from an accident, such parameters as heading,
air speed, altitude, gravity and wind force can be printed out for any
desired time increments prior to the accident.
ALASKA RAILROAD
The Alaska Railroad had an authorised staff of 930 persons
Zand a capital value —net worth of about $136 million in fiscal 1967.
Financing is conducted on a revolving fund basis similar to that used
by the Saint Lawrence Seaway. In addition to operating and maintaining
483 miles of railroad, this element controls a tug and barge line, docks
1
The accident analysis and statistical reporting functions for
aircraft, railroad, motor vehicle, motorboat and vessel presently
carried on by different elements of the new Department, with varyingdegrees of automation, appear on the surface to offer some potential
for integration. Procedural differences such as codes, type and amountof information required are significant but not unresolvable.
2U.S. Senate Hearings on S. 3010., Part 2, p. 181.
29
and terminals. The chief objective of the Alaska Railroad is to pro-
mote the development and settlement of the largest State. An IBM
1440 computer located in Anchorage performs administrative data pro-
cessing functions.
This completes the list of physical elements united by the De-
partment of Transportation Act of October IS, 196b. Certain other re-
sponsibilities and functions which did not include ' "people transfers**
were also assigned to the new Department. As shown by Appendix A,
many transportation elements of the Executive Branch were excluded
by the legislation. Although this chapter is not c oncernee with the
causes of that action, it should be pointed out here that many of the
excluded elements also use ADP in some degree. Their systems
should be considered in any future studies of or reorganizations of
governmental ADP activity in the transportation field. One example is
the statistical processing and analyses of vessel movements and cargo
performed by the Maritime Administration in the Department of Com-
1merce.
This description of the size, functions, ADP capabilities and
applications of the elements entering the new Department has pointed
U. S. House of Representatives, Committee on Post Office andCivil Service, Subcommittee on Census and Statistics. Hearings on
Government Electronic Oata Processing Systems . 89th Cong., 26 Sess.,
June 1966., p. 40
30
up some similarities, but also a vast range of differences. The next
chapter will discuss the pressures for coordination of these automatic
data processing systems and the amount of coordination required.
CHAPTER III
COORDINATION OF AUTOMATIC DATA PROCESSING
Governmental pressures to coordinate automatic data processing
in the new Department of Transportation include both the government -
wide pressures to coordinate ADP which have grown stronger in recent
years and the particular need to coordinate transportation policies and
activities which led to creation of the Department. This chapter will
examine these forces in some detail as well as considering some of the
broader aspects of information system coordination and the attitudes and
philosophies of individuals. The unique requirements and opportunities
of an organization which comes into being suddenly, rather than slowly
and traditionally, are discussed, as well as the special needs of program
budgeting.
In the late 1950*s, it became evident to both the Executive and
Legislative sides of the government that ADP and particularly electronic
computers could no longer be managed in the generalized fashion of
other office equipment. The General Accounting Office puolished its first
study on ADP management in government in 1958 and the Bureau of the
Budget completed a study on ADP responsibilities in 1959. A need for
— m mi ib ,w i hii i i .m w —» i — ii , i m i i iii »m m> '- ' i n . m — ' w mm n— mm , — »» w !! — ,
Appendix D to this paper includes specifics for governmental studies,
reports, ano items of legislation referred to in this chapter.
31
32
specialized management and Government-wide coordination was recognized.
In I960, the Bureau of the Budget published guidelines for studies to pre-
cede the acquisition of A DP equipment (Bulletin 60-6) and the GAO made
another comprehensive report to the Congress calling for more positive
central planning to promote efficiency, economy, and effectiveness in
ADP administration and management.
Circular A -54 issued by BOB in 1961 outlined policies for se-
lection and acquisition of ADP equipment including exact system speci-
fications and lease versus purchase evaluations as principal considera-
tions. Commencing in 1962 agencies were required to furnish annual re-
ports on ADP inventories and utilization to BOB. The 1963 report of
GAG stressed the dollar savings which could be achieved if the Govern-
ment purchased a larger portion of its ADP equipment, and again cited
a lack of effective coordination by the Executive branch. A bill to pro-
vide for increased government-wide coordination was passed by the
House in 1963 (H.R. 5171) but was not acted upon by the Senate. BOB
Circular A -61, issued in 1963, contained revised guidelines for apprais-
ing agency practices in the management of ADP equipment and recom-
mended that a central ADP authority be set up in each Federal agency.
This central staff was expected to coordinate the programs of individual
elements of the agency, to assure compliance with policies of higher
authority, to encourage agency -wide and interagency planning and inte-
gration, and to foster and coordinate time -sharing of equipment.
33
The 1964 report of the Comptroller General noted some im-
provements in government ADP management but was critical of the
agency -by -agency approach, it stressed the point that maximum
economy and efficiency in procurement and utilization of equipment
could not be achieved without centralized coordination which would
consider overall Government interests. BOB Bulletin 64-9 announced
the establishment of an experimental computer sharing service at the
National Bureau of Standards and BOB Circular A-27 extended and ex-
panded the computer sharing program to other areas. The General
Services Acministration was given the job of coordinating a sharing
program for all Executive agencies.
The results of an extensive study of ADP management prac-
tices in government, sponsored by the Bureau of the Budget, were pub-
lished in early 1965 } On March 6th of that year, BOB issued Circu-
lar A -71 which implemented the recommendations of the study by defin-
ing the ADP management responsibilities of BOB, GSA. the National
Bureau of Standards, and the Civil Service Commission, as well as those
of individual agency heads. BOB was designated as the source of over-
all leadership and coordination while GSA, NBS, and CSC were assigned
specific responsibilities for equipment, technical assistance, and per-
sonnel. Agency heads were charged with a number of specific
Commonly referred to as the "Clewlow Report,** for Mr.Carl W. Clewlow who directed the staff work for the study.
34
responsibilities which are repeated here verbatim since they represent
the most comprehensive official answer found during this study to the
question "V hat coordination of data processing is required in the new
Department of Transportation .
":
7. Responsibilities of the heads of executive agencies. Theheads of all executive departments and establishments areresponsible for the administration ana management of their
automatic data processing activities including:
a. Agency -wide planning, coordination and control of
equipment utilization.
b. Determination and use of those equipment applications
that offer the greatest return in terms of increasedeffectiveness in mission accomplishment and higherproductivity.
c. Development of data systems that employ the use of
the most advanced design techniques.
d. Merger or integration of data systems irrespective of
intra-agency or interagency organizational lines,
/Italics mine/ when cost effectiveness in equipmentutilization, data systems management, or programaccomplishment can be increased.
e. Determination of automatic data processing equipmentrequirements.
i. sharing equipment time and services within the agency,
and with other agencies through support of the Govern-ment-wide program for sharing exchanges* cooperation
in the establishment of service centers and other inter-
agency joint use arrangements.
g. Consideration of the potential impact of the introduction
of ADP equipment on the agency work force and taking
such steps as are necessary to alleviate adverse effects
to the greatest extent practicable.
h. Participation in Government-wide studies and programsfor improving the administration and management of
35
automatic data processing activities in the executive branch.
The General Accounting Office and certain Congressmen did
not believe that the guidelines for ADP management set forth by BOB
were sufficient in themselves. During the 196i> Hearings on H.R.
4845 they called for increased centralized management and coordina-
tion on a government-wide basis. Frequent mention was made of the
some 100 audit reports from GAO between 1958 and 1965 which re-
vealed deficiencies in ADP management on the part of individual agen-
cies, despite BOB directives then in effect.
ZH.R. 4845 became law under the title of P.L. 89-306 late in
1965. The Administrator of General Services was given primary oper-
ational responsibility for coordinating ADP management on a govern-
ment-wide basis. The Bureau of the Budget retained fiscal and policy
control while the National Bureau of Standards was charged with pro-
viding technical support and advisory services to individual agencies.
Responsibility for determining internal ADP requirements and systems
design remains with the using agency, while procurement is to be made
by GSA from a revolving fund. Hearings on government electronic data
processing systems held by a House subcommittee in June 1966 indicate
U.S. Bureau of the Budget Responsibilities for the Adminis -
tration and Management of automatic oata processing Activities.
Circular No. A-71., (Washington: March 6, 1965), pp. 4-5.
Commonly referred to as the "Brooks Bill,** for its
originator, the Hon. Jack Brooks, Representative from Texas.
36
that the full impact of the legislation has yet to be felt by most gov-
ernment agencies. An indication of future trends is provided by re-
cent developments within the department of Defense.
A more rigid system for coordination of management informa-
tion systems was announced by Secretary WcNamara during July 1966.
Pointing out that DOD operated almost 2,000 of the 2,600 computers
used by the Federal Government at that time, Mr. McNamara urged
DOD managers to set an example for the rest of the government to
follow
:
It is essential that we increase our efforts to improve the useof computers. Lefcnse managers must educate themselves onthe uses and capabilities of the computer; evaluate and clearly
state requirements for management information; and exercisepositive direction to ensure that these requirements are metby the computer system.
w e must take advantage of the tremendous capabilities of the
computer for data collection and analysis. V e can no longertolerate computer systems which are merely reflections of
earlier manual and punch-card systems, but must insist onsystems which satisfy our total management and operating re-quirements and which exploit the unique capabilities of the com-puter.
V»e must develop and install standard data systems within the
DoD at a level far exceeding our current practices. Thesestandard data systems must be developed for research anddevelopment and operational systems as well as businessmanagement-type needs. These systems should be designedto provide for uniform integration within functions on a serv-ice/agency-wide basis. Standardization is mandatory for all
systems with multi -activity application opportunities. This
requires centralized systems design/machine programming
37
at the highest level pertinent to the system application.
It is not being suggested here that all agencies must adopt
the practices and philosophies of the Defense Department hut it is be-
lieved that Mr. KIcNamar&'s policy statement is representative of the
current trend in the federal Government. As standardization and in-
tegration of ADP systems and information networks increases, auton-
omous computer installations will become more the exception than the
rule. This is the environment faced by the Department of Transpor-
tation as it commences operations.
Accepting a responsibility for increased coordination in the
automatic data processing area should not be particularly difficult for
an agency which was primarily created for the purpose of coordination.
The words coordination, coordinate, and coordinated appear 13 times
in the 3 1/2 page statement of objectives submitted to the Congress.
The special significance of coordinating successfully was emphasized in
an editorial which dealt with the elements and responsibilities not placed
in the new Department:
U. 5. Secretary of Defense Memorandum "Management and
Use of the Electronic Computer/* Washington, D. C, July 29, 1966,
pp. 1-2. He printed as enclosure (2) to Secretary of the Navy Notice,"Annual Guidance for the Preparation of Management Information Sys-tems Plans and ADP Plan Supplements ," Su.CNAV NOTICE 5200,
CMI:SDD, Jan. 13, 1967.
2U. 5. House Hearings on Creating a Department of Transporta -
tion, Part II, pp. 760-63.
•
36
Because of the objections of fiercely competing interest groups,
the new Secretary -will not be able to make a frontal assault onthe problems of coordinating the various transport services andensuring the efficiency of public investment in new facilities. Toaccomplish these ends the Department of Transportation musthave a voice in regulation of rates charged by the commoncarriers as well as in the investment decisions that are nowmade by a half dozen unrelated Federal agencies.
The best hope for causing the necessary powers to gravi-tate toward the Department of Transportation lies in excellent
performance. If Mr. Boyo can accomplish the speedy and
smooth integration of the existing agencies in the new Depart-ment, a compelling case can later be made for new andbroader powers.*
Much of the testimony during the Hearings which preceded the
Transportation Act centered on the question of the amount of power to
be placed in the office of the Secretary. The Chairman of the Trans-
portation Committee of the Second Hoover Commission stated that the
new Department should be left in a posture which would permit the
Secretary to exercise his own organizational judgment. He gave this
reason for his recommendation:
A Department of Transportation, properly administered andrealistically and ruthlessly drawing together the transportation
functions and activities covered by S. 3010. can substantially
contribute toward governmental simplification, efficiency, andreduced federal expenditure.^
Effective coordination of the diverse elements which make up the
new Department will require both power and strength. On the date he
signed the Transportation Act, President Johnson said that it would be
Editorial, The Washington Post, Nov. 9, 1966, p. A 24.
Mr. Perry M. Shoemaker, cited in U.S. House Hearings onCreating a Department of Transportation, Part II, p. 712.
39
a mammoth task to untangle, coordinate and build the national trans-
portation system. The Chief Executive told a group of guests assem-
bled at the ft hite House on that occasion what kind of man he wanted
for the post of Secretary of Transportation:
Because the job is great. I intend to appoint a strong man to
fill it. The new Secretary will be my principal adviser andstrong right arm on all transportation matters.*
Three months later, at the swearing-in ceremony for the
newest member of the Cabinet, the President descrioed the task facing
Mr. cJoya in these terms:
Alan Boyd will undertake a major assignment in attemptingto coordinate a national transportation policy for this land of
ours. He will attempt to get economy and efficiency, and give
the kind of results that the American people would like to point
to with pride.2
Much of the justification for establishing a separate Depart-
ment of Transportation was based on the cornerstones of economy and
efficiency. In both Senate and House Hearings, witnesses frequently
referred to potential dollar savings which could be realized after its
creation. Automatic data processing was often mentioned as a fruit-
ful cost-reduction area. The Director of the Bureau of the Budget told
the Senate Committee on Government Operations that:
There shoulc be possibilities for immediate savings throughsharing computer time. The prospects for long-time savings
1 uoted in The New York Times, October 16, 1966, p. 1.
viuotec in The V> ashington Post, January 17, 1966, p. A 2.
40
through coordinated or consolidated computer operations are
excellent.*
The head o£ the Federal Aviation Agency, which brings the
largest ADP budget and capability into the Department, reinforced this
view;
1 think economies are possible* because when you bring all ol
the different agencies and functions in the Department of Trans-portation, then you can start to consolidate overhead. For ex-ample, one tremendous area is in the ADP, automatic dataprocessing, where you can get more utilization out of yourcomputers, for example on payrolls, also many other areas .^
After the Hearings, the Committee on Government Operations
reported favorably on the Transportation Act to the whole House of
Representatives and cited several specific areas for potential economy
in ADP. Noting that there were 44 computers at 21 different cities
involved in the transfer, the Committee Report stated that savings of
$221,000 might be achieved within two years. These savings would
come from transferring ADP work performed by contractors to in-house
computers and also from making more effective use of present com-
puters. Commencing with the third year after creation of the Depart-
ment, annual ADP savings of $400,000 were predicted if certain actions
were taken:
These might develop through consolidation of Washington head-quarters computers into a departmental data processing center
«—— » i^——»~»~—
I
I —»—^——mm I II »i i n i i i .ii ~^m—~-, i m in n i
Hon. Charles Schultze, Senate Hearings on S. 3010, Part I, p. 82.
Gen. William F. McKee, House Hearings on Creating DOT ., p. 136.
41
and centralization of personnel and payroll data processing
functions.
Further long-term improvements in computer usage, requiring
in-depth study, were noted as possibly saving up to $1,670,000 per
year. The use of FA A Air Route Traffic Control Center reserve
computer capacity was mentioned as being several years away, but
it was stated that such use, if feasible, would eliminate the need for
several small computers.
These potential economies were suggested to the Congress by
the Bureau of the Budget and were arrived at in a study conducted by
representatives of BOB and the individual agencies. As will be dis-
cussed in more detail in chapter IV of this paper, the study included
the Maritime Administration which was not finally placed in the De-
partment of Transportation. Further, the study was admittedly a broad
survey and it was noted that each item of potential savings would re-
quire individual in-depth study before positive action could be taken.
Nonetheless, since ADP savings were used as one justifica-
tion for the new Department, it is reasonable to expect that some mem-
bers of the Congress with long memories will be inquiring in future
Hearings on budgetary and other matters what has been accomplished
along these lines. Since most of the computer usage improvements
lU. S. House, Committee Report No. 1701 , p. 11.
43
involve more than one element, coordination at the Departmental level
is essential. There are too many real problems and complexities in-
volved with any change in computer systems to expect the operating
agencies to undertake the necessary in-depth studies without impetus
being provided from the Departmental echelon.
No criticism- is intended of the operating elements or their
willingness to be coordinated and to cooperate in cost -reduction pro-
grams. The fact remains that their principal and valid concern is
with the day-to-day execution of the programs and activities for which
they are responsible. ADP coordination for the realization of savings
is principally a responsibility for a central ADP management staff.
The job of the staff in this regard has been made easier by
recent trends in the ADP field. The latest UNIVAC computers, series
9000, have been reported to be compatible in many respects with the
IBM system 360 computers* According to one writer, the decision which
led to this increased compatibility between the equipments of these two
large manufacturers:
represents a giant step toward improved communication amongcomputers, lower re -programming and retraining costs, lesseneddependence upon a single equipment supplier, and greater stan-
dardization throughout the industry.!
It would be unwise however to suppose that, oecause standard
codes, compatible equipments, and common languages such as COBOL
John R. UUlegas, "The New UNIVAC 9000 Series,'* Data Pro -
cessing Magazine, August, 1966, p. 53.
43
and FORTRAN have become increasingly prevalent, the coordination
of ADP systems and installations is a simple matter. Knowledgeable
persons interviewed during this study almost universally pointed out
that there are countless differences between computers and between
the systems of which they are an integral part. One illustration of
the dangers of an oversimplified approach lies in the subject of
monthly usage rates for different computers. A computer which runs
24 hours a day the year round may be programmed inefficiently or
may be performing tasks which should not have been placed on a com-
puter in the first place. Another computer with considerably less
hours per month to its credit may be contributing greatly to the ob-
jectives of the organization and may actually be saving money also,
because of the nature of the jobs it performs and the efficiency of its
programming.
The Clewlow Report emphasizes the need for caution in search-
ing for simple solutions in the opening paragraph of its first chapter:
Failure to give adequate recognition to the differences that
exist among computer installations has complicated the problemsof management and contributed to misunderstanding. These dif-
ferences are due to variations in the missions of agencies using
the installations, in operating objectives, and in operating re-quirements surrounding the use of computers. Also, installa-
tions vary in respect of the qualifications required of their
staffs and the kinds of equipment that arc used. The purposesfor which computers are used cover the breadth of governmentalactivity.^
U. S. Senate, Committee on Government Operations. Report to the
President on the Management of Automatic Data Processing in the FederalGovernment. Document No. 15, 89th Cong., 1st Sess., March 4, 1965, p. 9.
44
further complications arise when computers are considered
in the context of a larger management information system complex.
Management theorists differ substantially on what constitutes the best
type of management information system for a large organization. Is-
sues which quickly come to the surface in this type of discussion in-
clude the proper location for decision-making functions, centraliza-
tion versus decentralization, and line authority versus staff responsi-
bility. While it is not the purpose of this paper to prescribe a
management system for the Department, it would be taking too nar-
row a view to discuss ADP coordination without mentioning the broader
aspects also.
John Dearden has pointed out that management's first con-
cern should be the adequacy and quality of its information system,
particularly with respect to strategic planning and management con-
trol. There are techniques available at present for achieving any
level of automation and standardization the budget will stand. By re-
quiring the individual elements to use standard cooes and standard
formats, a central staff component can collect the ADP tapes used by
each activity and merge them on a central computer for such analyses
as top management desires. Such an approach requires that top
* 'Management Information Systems and the Computers,*' Man -
agement Control systems --Cases and Ke actings, by Robert N. Anthony,John Dearden, and Richard F. V>ncil (Homewood, 111.: Richard D.Irwin, Inc., 1965), p. 519.
45
management recognize the capability of computers to tighten coordina-
tion throughout the organization. It further requires that management
believe that tighter control is desirable. V bile many organizations
have not chosen to adopt this centralized approach, it is suggested
here that the Department of Transportation will eventually do so, be-
cause in addition to the pressures already mentioned, the planning/
programming/budgeting concept points that way.
The Bureau of the Budget directive which extended the
planning/programming/budgeting system developed in the Defense De-
partment to other Federal agencies stated that an output -oriented pro-
gram structure should be designed by each agency to present data on
all operations and activities in categories which reflect the agency's
•ad purposes or objectives. It was further noted that:
The program structure will not necessarily reflect organiza-tion structure. It will be appropriate and desirable in manycases to have the basic program categories cut across bureaulines to facilitate comparisons and suggest possible trade-offs among elements which are close substitutes. It is also
desirable to develop program formats which facilitate com-parisons across agency lines.
*
The Task Force which laid the groundwork for the new De-
partment recognized its opportunity to develop a unique organization.
L. R. riock, Jr. "Seven Deadly Dangers in EDP,"Harvard Business Review, May -June 1962, pp. 88-96.
ZU.S. Bureau of the Budget Planning -Programming -Budgeting .
Bulletin No. 66-3, (Washington; Oct. 12. 1965), p. 5.
46
An unpublished briefing paper entitled "Concept of Organization'*
written in late 1965 stressed the fact that the merger of existing
agencies need not be bound by traditional organization lines* and that
modern management principles and techniques could be used to pro-
duce a coordinated team, capable of total transportation effort. Also
recommended was the consideration of a coordinated planning/ pro-
gramming/ budgeting system for the new Department, combined with
an analytic capability at the Secretary's level.
To realize the unique advantages of oeing a new organization
and to implement the spirit of the planning/ programming/ budgeting
directive, the Department of Transportation will require a great deal
of internal coordination. It will probably not be sufficient to merely
patch together the present program structures and information systems.
A total approach which utilizes the full potential of computers to es-
tablish the desired degree of centralized control is more likely to prove
successful.
The human relations aspects of the coordination problem should
not be overlooked. Steps should be taken by the central ADP staff to
minimize the effects of resistance to change which may develop within
the operating elements. As noted by one writer:
Resistance to change is a fundamental attitude present in all
people to different degrees. The best of plans has been known
Interview with Task Force member, CM David F. Lauth,USCC on January 19, 1967.
47
to fail because those principally engaged in carrying out the
procedure were not consulted in its development and, as a
result, had made up their minds before testing, that the
change would not wor»*.*
AJDP coordination is a complex and difficult task. Involving
the managers of AJDP facilities and the users of ADP outputs in the
planning process will ensure that all problems and viewpoints are
given proper recognition before any changes are finalised.
It has been shown that the pressures for coordination of
automatic data processing in government and in the new Department
are both real and strong. They stem from many causes but the over
all effect is toward increased integration and standardization of AD?
systems. The next chapter will discuss in more detail those steps
which have already been taken to improve coordination in this im-
portant area.
John V* . Haslett, "The Systems and Procedures Department,**Systems and Procedures—A Handbook for Business and Industry,
ed. Victor Lazzaro (Lnglewood Cliffs: Prentice -Hall, Inc., 1959), p. 17.
PROGiifcSS TO DA7
Several positive steps have already been taken toward the
achievement of coordination of automatic data processing in the De-
partment oi Transportation. Starting prior to the {-resident's request
to the Congress for a new cabinet-level agency and continuing through
the time this paper was written in March 1967, many individuals from
the elements and from other governmental offices have worked long
and haro to reach the point where matters now stand.
The first time that representatives of the individual elements
met together to discuss ADP capabilities occurred at an early stage in
the preparation of the President's proposal. Under the general super-
vision of Bureau of the Budget staff members, a broad study was made
of the possible savings which could be realised in the ADP area, as a
result of integrating and sharing present resources, once the battle
on Capitol Hill for estaolishment of a Department of Transportation
terminated, and the identity of the elements which would be included
was known, another interim group met to determine which elements
woula need special AiJP services curing the transition period from one
organizational structure to another. At the same time, other members
43
49
of an Executive Task Force were attempting to work out questions of
organization, assignment of functions and responsibilities, and deter-
mination of the size and grade level of the central Departmental
staff. Recruitment and selection of personnel to fill staff positions
was begun, and the critical question of the first year's budget was
addressed.
In addition to the groups working within government lines, a
management consulting firm was conducting an independent study of
information needs In the Department of Transportation. This chapter
will examine each of these actions in some detail, as they relate to
the ADP coordination theme.
Representatives from the Bureau of the Budget, Bureau of
Public Roads, Coast Guard, Federal Aviation Agency, and the Mari-
time Administration held several meetings In late 1965 and early 1966
on the subject of possible ADP savings. Emphasis was placed on dol-
lar and manpower savings which could be attained through cooperative
arrangements between elements, rather than on savings which indivi-
dual elements could achieve within their current organizations. In
this way, potential savings could be directly attributed to creation of
the new Department. Previous attempts to form a Department of
Transportation, most of which took place prior to the computer age,
Interview with Mr. Clark Renninger, ADP ManagementBranch, Bureau of the Budget, February 3, 1967.
50
had a Iway* been defeated La the Congress, because sufficient justifi-
cation and support to overcome the opposition of carriers and indus-
try groups could not be generated. The potential savings to be
realized through more efficient use of computers was recognized as
a major factor in support of the current proposal.
After considering the possibilities for savings from joining
the ADP capabilities of the Office of the Under Secretary of Com-
merce for Transportation, Bureau of Public Boads, Maritime Ad-
ministration, Federal Aviation Agency, and Coast Guard in the
Washington, D. C. area, the group also considered various possi-
bilities for combinations and savings in other locations. The results
of their study were submitted to the task force which was preparing
2the legislative proposal. The report contained many qualifying
phrases such as "reasonable on a conceptual basis," and "fraught
with administrative difficulties, " which were intended to warn a
casual reader that these potential savings were only possibilities
which would require a great deal mov study in depth before they
would be implemented and realized.
L. S. House Hearings on Creating a Department of Trans-portation , Part 2, pp. 819*24.
2Unpublished report of DOT task-force sub-group on ADP,
submitted March 1966, p. I.
interview with LCDR J. Morrow, USCC, January 19. 1967.
51
Among the specific Items which the group believed to be de-
serving of further study to determine if they were, in fact, opera-
tionally and economically feasible were the transfer of some ADP
work performed by private contractors to In-house facilities (at
a potential annual saving of $125,000.00), the transfer of certsin
Coast Guard ADP work from EAM equipment to computers
($32, 000. 00), and the curtailment of plans to acquire a new computer
for the Office of the Under Secretary of Commerce for Transporta-
tion ($64, 000. 00). The Items In this category were felt to be attain-
able within two years after creation of the Department, If the neces-
sary related decisions and actions v ere forthcoming.
The study report went on to identify further Items of poten-
tial savings In the time frame beyond two years. One possibility
considered was the consolidation of computers at the Washington Head-
quarters of each element Into a single large-scale data processing cen-
ter. An annual savings of $300,000.00 was estimated if the single
center concept was adopted. A separate Item Involving the centrali-
sation of personnel and pay-roll ADP functions was considered to
represent a possible $100,000.00 saving each year.
Certain other Items were classified as contingent on non-
ADP related factors and decisions. These Included the consolidation
at one location of the computers performing tasks related to aircraft
maintenance for the Coast Guard and the Federal Aviation Agency
52
($100, 000. 00), and the possible release of the Maritime Adminis-
tration's computer ($70,000.00). The final contingent item carried
the largest potential for dollar savings ($1, 500, 000. 00), and this was
the utilisation of reserve computer capacity at the air route traffic
control centers of the Federal Aviation Agency,
One member of the group, who characterized the study in
a later Interview as very rough and not done in depth, also stated
that the report was pointed enough that someone else could pick it
up later, and proceed from that basis toward getting something ac-
complished. * One conclusion stated in the report was that:
Potential savings appear to be in the direction of graduallyevolving rearrangements that will require program adjust-
ments, organizational adjustments, and equipment replace-
ments. *
The factors con plicating any real savings of Immediate na-
ture were Identified as the geographic dispersion of present ADP
facilities, the extensive incompatibility between equipments, and
the multi-functional nature of applications.
A final recommendation of this group pointed again to the
complexity of current ADP arrangements and stressed the need for a
strong ADP management staff at the Secretarial level of the new De-
partment, The guidelines of Bureau of the Budget Circular A-61
Mr. Benninger, BOB, February 3, 1967.
Unpublished report of ADP sub-group, p. 4.
53
were cited In support of the recommendation that a strong central
authority, which could coordinate ADP programs throughout the De-
partment, was required.
Although nearly six months elapsed before another group
met to consider the problem of Interim ADP services, the forces
working toward ADP coordination were frequently seen In the legis-
lative Hearings on creation of a Department of Transportation held
In the Summer of 1966. The testimony of administration witnesses,
cited In Chapter III of this paper, kept the possibilities of savings
through ADP coordination and cooperation before the attention of the
Congress. The extent to which this factor contributed to the pass*
age of the Transportation Act can not be measured, but It was cer-
tainly of some help.
With the signing of the legislation by President Johnson, a
new phase of coordinating activity began. On October 18, 1966, Vice
Admiral Paul £• Trimble, United States Coast Guard, was designated
the head of a new Inter-agency task force to organize and staff the
Department. 2 Within this task force, working groups composed o£
representatives from each element and the Bureau of the Budget were
Ibid. , p. 7.
*U. S. , Bureau of the Budget, "Memorandum for VADMPaul E. Trimble, USCC, Chairman, Department of TransportationTask Force," Washington, D. C. : October 18, 1966.
.
.
54
established. The Task Force was charged with responsibility for
maintaining continuity of existing operations as well as for getting
the new Department established. Areas for which plans were to be
developed and procedures outlined Included accounting, budget, finance,
personnel, office space, furnishings, services (including automatic
data processing), and other administrative matters.
Coordination of ADP support was assigned to the working group
for Support Services, which rede legatee the responsibility for ensuring
that all elements entering the new Department would receive ADP sup-
port during the transition phase to an ADP sub-group. The sub-group
was staffed, among others, by two managers of computer facilities In
the Washington, D. C. area, Mr. Keith Kohler of the Bureau of Public
Bonds and Commander Otto Unslnn, United States Coast Guard. This
assignment brought together personnel with knowledge of current ADP
workloads and operating practices, and was therefore a logical ap-
proach to the immediate problem of Interim ADP support.
The sub-group contacted all elements entering the Depart-
ment. A memorandum was prepared during December 1966 listing
those elements which had their own ADP capability and would require
no Interim services, and those elements which did not have In-house
ADP capability and would require special arrangements.
Interviews with Mr. Kohler and CDR. Unsinn, December 9, 1966.
Unpublished memorandum, from Chairman ADP sub-group to
Chairman, Support Services working group, December 6, 1966.
55
The first category included the Bureau of Public Roads, Coast
Guard, Federal Aviation Agency, and the High Speed Rail Transporta-
tion component within the Office of the Under Secretary of Commerce
for Transportation. The sub-group recommended that these elements
continue present ADP operations.
The second category Included the Bureau of Safety of the
Civil Aeronautics Board, two offices in the Lnder Secretary of Com-
merce for Transportation organization, two segments of the Interstate
Commerce Commission, and the Saint Lawrence Seaway Development
Corporation. In each case it was determined that the elements could
continue obtaining ADP services from Its present source on an In-
terim basis, and the sub-group recommended that this be done.
The Support Services working group considered the question
of ADP and other services for the Office of the Secretary of Trans-
portation. After It had been determined that the Office of the Secre-
tary would be on the 8th floor of the Federal Aviation Agency building,
the responsibility for providing general administrative support to that
office was assumed by the FAA. Accounting services were assigned
to the Coast Guard and payroll support for the Office of the Secretary
was made the responsibility of the Bureau of Public Roads. 1
The organisation structure for the new Department had
U. S. Coast Guard Commandant's Bulletin, (Washington,D. C. , December 23, 1966), p. 5.
56
begun to take shape in January 1967. Figure 1 presents a general
view of the organization as visualized by the official employee pub-
lication of the Federal Aviation Agency.
Many of the organizational details such as assignment of
functions and responsibilities, staff size, actual selection of person-
nel, and lines of authority had not been finalized at the time this
paper was written. The staff component with central ADP manage-
ment responsibility was expected to be assigned under the Assistant
Secretary for Administration. Civilian employees on the ADP staffs
of the individual elements had been given an opportunity to request
transfer to the Departmental staff. The Bureau of the Budget was re-
ported to be considering a reduction in the number of staff personnel
recommended by the Task Force, which was delaying the actual selec-
2tion and assignment of persons to jobs.
While the results of these organizational birth pangs will have
a considerable effect on the future of ADP coordination in the Depart-
ment of Transportation, none may have as great a significance as the
results of a private consulting firm's study of the information needs
of the Department, which was being conducted during the same time
frame. The gentleman who did most of the work on this study is a
widely recognized expert in the systems engineering field, and the
FAA Horizons. (Washington, D.C.: January, 1967), p. 15.
Interview with CDR D. Dauth. USCG. January 19, 1967.
•
57
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58
former head of the ADP management branch of Bureau of the Budget,
Mr. \\iliiam A. Gill.
As described by Mr. Gill, the emphasis in his study was on
finding and establishing a philosophical and conceptual groundwork for
the flow of transportation information between federal, State, and local
government bodies. Mr. Gill stressed the need for a determination
of information requirements at all level* before any attempt is made
to design an ADP information system th, meet those needs.
Since the objectives and responsibilities of the new Depart-
ment of Transportation require that its Secretary and other top offi-
cials think in terms of all modes of transportation, Mr. Gill believed
that a wonderful opportunity now existed to plan for an information
system which would foster and promote multi-modal thinking at State
and local levels as well. He pointed out that about 50 per cent of
the information concerning movement of people and commodities in
the United States is not presently reported or published in any form.
Many carriers and activities such as municipal transport authorities
which do gather and report such statistics, utilize codes and reporting
systems which are unrelated and incompatible.
Speaking to the Navy Graduate financial Management Glass,George Washington University, February 15, 1967.
Although not specifically mentioned by Mr. Gill, the codesand reporting systems of the Federal agencies studied in the courseof preparing this paper were also found to bear little similarity to
each other.
59
The conclusions which Mr. Gill intended to report to the Sec-
retary of Transportation in late February 1967 were that a staff com-
ponent devoted to information planning in the broadest sense should be
established at a high level in the Departmental structure, and that
personnel with the ability and background to think and plan in terms of
all modes should be assigned to it. This component would determine
and plan for the information needs of all levels of the Department
,
as well as those of State and local governments, carriers, other
transportation interests, and the public.
The impact of such a total philosophy, if adopted, on the
automatic data processing systems of the Department would be tre-
mendous. Once total needs were determined, common languages and
reporting systems could be designed. The integration of systems would
become standard, and a maximum of ADP coordination would be the
normal environment. Expansion of present systems to handle the great
increase of information flow would be required, and all changes and
increases to the ADP network could be made to conform to the new
multi -modal pattern.
It may take some time for this broad planning concept to
permeate the activities of the operating elements. Many practical
difficulties and problems obstruct its realisation. Yet, it would be
illogical to dismiss this type of thinking too lightly. It falls right
in line with the goals and objectives of the Department of Transporta-
tion stated in chapter I. It is responsive to the pressures for
60
increased AD? coordination described in chapter III. The first steps
have already been taken. Adopting anything less than a total approach
may just be postponing the inevitable and wasting valuable time.
CHAPTER V
SUMMARY AND CONCLUSIONS
The Department oi Transportation is the newest cabinet -level
agency in the Executive branch of the government of the United States.
With nearly 100,000 employees and an annual budget of about $6 billion,
it represents a long awaited attempt to coordinate Federal activity in
the transportation field.
The Department was created because of a need to improve on
an existing situation. Responsibility for various government policies
and programs in this field had been scattered among a wide variety
of agencies. Criticism of the lack of central leadership was heard
from many sources. Consolidation of information and research effort
was urged in such fields as transport safety and accident prevention.
The growth of all modes had brought about the increased investment
of government funds. It becameevident that the establishment of a
separate Department to deal with the problems of the present and
the future was required.
The objectives of the new Department include the coordinated,
effective administration of transportation programs, promotion of the
nation's transportation system, and development of national
61
t>2
transportation policies. :. articular attention is to be given to safety,
and to strengthening the weak points of the present transport complex.
The tasks facing the new Secretary and his central staff are formid-
able. The first test of their ability to solve the nation's transporta-
tion problem will be the facility with which they can coordinate the
efforts and capabilities of individual elements assigned to the Depart-
ment into a unified organization.
The elements which were placed in the new Department in-
clude both staff components and operating agencies. The office of
the Under Secretary of Commerce for Transportation with some 150
persons and $IB million annual budget brings a familiarity with gen-
eral transportation problems and broad policy development into the
Department. The head of that office, the Honorable Alan S. idoyd,
has been appointed as the first Secretary of Transportation. The
Bureau of i-ublic Roads with nearly 5©00 persons and an $4.S billion
budget was also transferred from the Commerce Department to the
Department of Transportation. This element is responsible for a
variety of functions relating to the nation's highways. It contributes
an important segment of the automatic data processing capability and
expertise available to the Department. A wide range of administrative
and engineering applications is currently being processed on toe
Bureau's computers.
The United States Coast Guard with its 41,000 military and
63
civilian employees and $500 million budget brings a variety of marl-
time transportation functions into the Department. ADP applications
at present include administrative, engineering, and oceanographic re*
search, as well as the vessel reporting system for search and rescue
assistance to aircraft and shipping in both the Atlantic and pacific
oceans. The Federal Aviation Agency contributes a staff of over
44,000 persons and a $1 billion budget to the new Department. In
addition to extensive ADP systems for administration of its many avia-
tion programs, the FAA also brings multi -million dollar, real-time
computer systems used in air traffic control.
Segments of the Interstate Commerce Commission dealing
with safety and accident investigation for railroads, bus, truck, and
pipeline carriers comprising about 500 persons and carrying a $6
million budget were transferred to the Department of Transportation.
The component of the Civil Aeronautics Board with responsibilities for
aircraft safety and accident investigation contributes nearly 200 persons
and a $3.5 million budget as well as an extensive computerized approach
to analysis of the cause of accidents.
Other elements included in the Department are the Great Lakes
Pilotage Administration, St. Lawrence Seaway Development Corporation,
and the Alaska Kailraod. Many differences in size, functions, and ADP
capability are evident among the various elements. A wide range of
ADP applications exists.
64
Pressures for coordination of automatic data processing in all
government agencies have grown steadily stronger in recent years. A
need for specialized treatment of ADP and electronic computers was
recognized in the 1950's. Intensive studies were undertaken under the
direction of the Bureau of the Budget. The General Accounting Office
has issued many critical reports on various phases of ADP manage-
ment. Several Congressional committees have held Hearings on the
subject and legislation was enacted in 1965 to cope with the problem
on a government-wide basis.
The responsibilities for coordination of ADP which are pres-
ently assigned to the head of each government agency include agency
-
wide planning, control of equipment utilization, development of data
systems, and the merging or integrating of data systems irrespective
of organizational lines. Coordination on a government -wide basis is the
responsibility of the General Services Administration. Increased em-
phasis on standardization of data systems is being applied within the
Department of Defense. It appears that this trend will spread to other
agencies.
The government-wide pressures for coordination of ADP are
supolemented within the Department of Transportation by the needs and
objectives of the new organization. Coordination of transportation policy
and effort was one of the major causes for creation of the Department.
Speedy and smooth integration of the existing element* will lay the
65
groundwork for later expansion of functions and powers. Coordination
for the purpose of effecting savings m ADP operations was forecast prior
to passage of the Transportation Act. idealization of these savings will
require intensive effort by a central staff.
Kecent trends in the ADP industry toward standardization of
languages and compatibility of equipments will enhance this effort.
Complex problems are introduced by the differences between computer
installations and by varying theories on what constitutes the proper
management information system for a large organization. The capa-
bility of computers to tighten controls throughout an organization will
not be realized unless top management both recognizes the possibility
and desires that it be done.
The planning/ programming/ budgeting system represents another
pressure toward coordination and integration of ADP systems. Output -
oriented program structures must be developed which facilitate com-
parisons across organizational lines. The opportunity offered by the
creation of a new Department to avoid the restrictive effect of tradi-
tion was recognized by the organizational Task Force. A total approach
to developing new program structures and information systems appears
more likely to prove successful than an approach which patches together
present systems. Resistance to change should be minimized by seeking
to involve the managers of ADP installations and the users of ADP
services in the planning and development process.
66
Several positive steps have already been taken toward achieving
ADP coordination in the new Department. The early meetings on sav-
ings between personnel from each element and the representatives of
the Bureau of the Budget considered various methods for combining and
sharing capabilities, items recommended for further consideration and
in-depth study included the transfer of contractor work to in-house
facilities, consolidation of ADP facilities at several locations, and the
possible use of reserve computer capacity at the Federal Aviation
Agency's air route traffic control centers. Complications hindering
quick realization of savings were identified as the geographic dispersion
of present ADP facilities, extensive incompatibility between equipments,
and the multi-functional nature of ADP applications. A recommenda-
tion for a strong central ADP management staff in the new Depart-
ment concluded the report of this study group.
Further coordinating action was undertaken by the Task Force
for organization and staffing of the new Department in the months fol-
lowing enactment of the legislation. The ADP sub-group of the Support
Services working group contacted all elements entering the Department
to identify needs for ADP support. Elements with existing capabilities
such as the Bureau of Public xioads, Coast Guard, and Federal Aviation
Agency were designated to assume some additional tasks as well as
continuing present ADP operations. Elements obtaining ADP services
from other sources were authorized to continue doing so on an interim
67
basis.
Many details of organization and staffing had not been finalized
when this paper was written. A separate study by a private firm was
in progress to determine the information needs of the Department of
Transportation at all levels. A total approach to information flow
between Federal* itate, and local government bodies was under con-
sideration. The recommendations from that study would include, ac-
coroing to Mr. Gill, the establishment of a staff component for all-
moaal information planning at a high level in the Departmental struc-
ture. i*he impact of the total information concept would be to further
integrate and standardize data systems. It would complement the goals
of the Department as well as responding to the numerous pressures
for ADP coordination.
It is believed that the more substantive questions raised in
the introduction to this paper have now been answered. The identity
of the Department and its elements, the reasons for its creation, and
the objectives which it hopes to attain, have all been established within
the limitations of this work and its author. Factual answers have also
been given to the questions of how much ADP coordination is required
and what has been accomplished so far.
More difficult to answer is the question of how much coordina-
tion is "right,** in a prescriptive sense, for this Department. This
decision requires a value judgment. The experience and interests of
be
the one making the appraisal must have some effect on his concept of
"
'Tightness.'*
The personal conclusion which has been drawn is that in-
creased standardization and integration of systems is both inevitable
and desirable. The long history of scattered responsibility and inco-
herent policy in the Federal transportation domain should not be
allowed to continue. The demands of a 21st century transportation
system must soon be met. V ith vigorous coordination, the computer
can be a most useful tool for solving the problems of the present and
meeting the challenges which lie ahead. Based on this conclusion,
the following recommendations are offered.
As soon as the initial confusion of establishing and staffing
the Department has subsided, an in-depth, realistic appraisal should be
made of the value to be gained from various methods of integrating and
standardising present ADP systems. Over-simplified approaches should
be avoided, but a total approach should be used to the greatest possible
extent. Dollar savings are not necessarily of first importance. Oper-
ational equipments should not be appraised under the same ground rules
as administrative systems, but all present and potential ADP applica-
tions and needs should be considered.
A considerable number of trained and dedicated persons are
already present within the structure of the Department. Their knowledge
and ideas should be incorporated into the intensive study which is being
*•
69
recommended here. Jivery attempt should be made to encourage and
re-ward thinking which goes beyond narrow, jurisdictional lines and
promotes a total team effort. Coordination between the central ADP
staff, operating elements, and the component working on total in-
formation needs will be crucial.
Sufficient time should be allowed for the study so that all
factors can be properly considered. Conducting this research has
given this observer a somewhat better understanding of the complex-
ities and difficulties involved with achieving a high degree of ADP co-
ordination in a large, newly-created organization of diverse elements.
The problems of the operating agencies and the effects of any pro-
posed changes should be considered as well as the desires of top
management and the needs of the over -all organization and the public.
Once a through study has been made, a balanced plan of action,
which takes all these factors into account, should be prepared, approved,
and firmly implemented. Unjustified resistance from any source should
not be allowed to impede progress. Problems and difficulties must be
faced up to and dealt with. If the trees are allowed to obscure the
forest for too long, the new organization may acquire the rigidity of
maturity* and a unique opportunity will pass by, unrealized.
> -
70
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74
APPENDIX B
ADDITIONAL DATA ON ADP CAPABILI'
OF D.O.T. ELLMLNT
1. demonstration Division, Office of High-Speed Ground Transport*-tion. Commerce Department.
IBM 1440, 12K computer.Kimball KR-1200 Reader.1442 card -read -punch.1443 printer.
2. Bureau of Public Roads:
IBM System/360 model 50.
3 selector channels.1 multiplexor channel.
4 2311-1 disc units.
2 2540-1 card -read -punch.2 1403-N1 printers.
10 2400 series tape drives.
1 1052-7 typewriter console.
3. Coast Guard:
IBM 1410, 40K computer.13*1 disc drive.
5 tape drives.
IBM 1130/computer8K
4. Federal Aviation Agency:
IBM 1401, 16K computer.1402 card -read -punch.1403 printer.
1311 disc unit.
5 tape drives.
2311 disc unit.
Leased. (Approx: $5500/month)Staff of 5.
Leased. (Approx: $33,000/month)Staff of 71.
(Being replaced by above system)
IBM 7010.
2 IBM 1401 computers.
Owned.Staff of 63.
Owned.Staff of 3.
Leased.
(Scheduled for early replacementby IBM System/360 model 30.)
Data shown for Headquarters installations only. Source:interviews Jan. 1967 and agency reports. Should be used for roughcomparison only due to frequent changes.
75
APPENDIX C
ADDITIONAL. DATA ON ADP APPLICATIONS
OF D.O.T. ELEMENTS1
1. Summarised totals by broad functional areas:
Functional area Number of
Comouters
Number of
Locations
Administration
Payroll
Research, Planning, Ik Engineering
Logistics Management
Certification, Identification, &Location
Overhaul it Maintenance
23
17
16
18
10
15
11
7
12
Training £ 4
Unique to Agency 8 7
2. Summarized totals of multi-functional operations:
Number of functional areas processed:J.
2 j 4 5 6 7 8
Number of computers 21 4294211— " ' i — ——^» I I I
»—»»»- II ii..i 1 III in I ! i I .. —
Source: Unpublished report of ADP -sub -group, D.O.T. TaskForce, March 1966.
ZFigures intended to illustrate wide variety of computer appli-
cations, and have not been corrected for changes since March 1966.
Lxcept for subtraction of 1 Maritime Administration computer whichwas included in that study, all changes would be additive to reflect
steady growth in computer utilization by all agencies.
76
APPENDIX C- -Continued
3. Congressional Hearing and Reports.
House of Representatives, Committee on Post Office andCivil Service, Subcommittee on Census and Statistics:
"Use of EDP Equipment in the Federal Government/*(August 31, 1960)
"Use of E.DP Equipment In the Federal Government,*'House Report 358 (October 16, 1963).
"Government ED? Systems" (June 14, 15, 28, 29 1966).
House of Representatives, Committee on GovernmentOperations, Subcommittee on Government Activities:
"Hearings on H.R. 5171,** House Report 428, (May 1963).
"Hearings on H.R. 4845,** (March -April 1965).
(Similar biUs. H.R. 5171 failed in Senate. H.R. 4845became P.L. 89-306)
4. Legislation.
Public Law 89-306-(A Law to provide for the economic andefficient purchase, lease, maintenance, operation, andutilization of ADP equipment by Federal departments andagencies.), October 30, 1965.
77
'ENDIX D
REPORTS, STUDIES, HEARINGS, AND LEGISLATION
RELATING TC THE COORDINATION OF ADP IN
THE FEDERAL GOVERNMENT1
1* Comprehensive government-wide studies and reports of the
Comptroller General. (GAO file No. B-115369 applies to
each of the following 4 reports.)
"Summary of Progress and Trend of Development andUse of ADP in Business and Management Control Sys-tems of the Federal Government as of December 1957,**
(June 1958).
"Review of ADP Developments in the Federal Govern-ment.** (December 1960).
"Study of Financial Advantages of Purchasing OverLeasing of Electronic Data Processing Equipment in
the Federal Government,** (March 1963).
"Review of Problems Relating to Management andAdministration of EDP Systems in the FederalGovernment,** (April 1964).
2. Studies and Reports sponsored by the Bureau of the Budget .
"Report of Findings and Recommendations Resulting fromthe ADP Responsibilities Study, September 1958-June 1959/(1959). Reprinted in Hearings on H.K. 4845, 89th Cong.,
1st sess., p. 567-614.
^Source: U.S. House of Representatives, Committee onGovernment Operations. Report on H. K. 4845- -ADP Equipment.Union Calendar No. 360, House Report No. 802, 89th Cong., 1st
Sess., August 17, 1965, and U.S. House of Representatives, Com*mltee on Post Office and Civil Service. Hearings on GovernmentEDP Systems. 89th Cong., 2c sess., June 196b.
7tt
APPENDIX D --Continue*
* 'Report to the President on the Management of ADP in
the Federal Government/' (March 1965). Printed as
Senate Document 13, 89th Cong., 1st sess.
BIBLIOGRAPHY
Public Documents
U.J. Bureau of the Budget. Guidelines for Appraising Agency Prac-tices in the Management of Automatic Data Processing (ADP)Equipment in Federal Agencies, Circular No. A-61, August3, 1963.
. Inventory of ADP Equipment in the Federal Government,July 1966.
• Planning - -Programming- -Budgeting. Bulletin No. 66-3,
October 12, 1965.
U.S. Comptroller General. Report of Review of Problems Relatingto Management ano Administration of Electronic Data Pro-cessing Systems in the Federal Government. GAG File
No. B-U5369. April 30, 1964.
U.S. Department of Commerce. The United States Department of
Commerce Promotes Economic Growth- -A Guidebook to
Commerce: Agency of Business, April 1966.
U.S. federal Aviation Agency. Agency ADP Study. Vol. 1, October
8, 1963.
. The Federal Aviation Agency, September 1964.
. System Description --National Airspace System En RouteStage A , April 21, 1965.
U. S. House of .Representatives, Committee on Government Operations,
Report to Accompany U.K. 15963- -Department of Transporta-tion Act. Report No. 1701. 89th Cong., 2d Sess., July 15,
1966.
. Committee on Government Operations, Subcommittee on
Executive and Legislative Reorganization. Hearings on H,R,
13200 --Creating a Department of Transportation. Parts 1 and
2. 89th Cong., 2d Sess., April-June 1966.
79
80
U.S. House of Representatives, Committee on Government opera-tions, Subcommittee on Government Activities. Hearings onH.R. 4645 --Automatic Data Processing Equipment. 89thCong., 1st Sess., March-April 1965.
. Committee on Government Operations. Report on M.K.4845, ADP k quipment. Union Calendar No. 360. ReportNo. 802. 89th Cong., 1st Sess., August 17, 1965.
. Committee on Post Office and Civil Service, Subcom-mittee on Census and Statistics. Hearings on GovernmentElectronic Data Processing Systems. 89th Cong., 2d Sess.,
June 1966.
. Conference Report- -Department of Transportation Act.
Report No. 2236. 89th Cong., 2d Sess., October 12, 1966.
9S» Public Daw 89-306- -Economic and Efficient Purchase. Lease,Maintenance, Operation, Utilization of ADP Equipment byFederal Departments and Agencies. H. R. 4845. 89th
Cong., 1st Sess., October 30, 1965.
U.S. Public Law 89-670- -Department of Transportation Act. H.R.15963. 89th Cong., 2d Sess., October 15, 1966.
U*S. Senate, Committee on Government Operations. Hearinns onS. 3010 --Establish a Department of Transportation* Parts 1
to 4. 89th Cong., 2d Sess., March-June 1966.
. Committee on Government Operations, Report to Acconvpany S. 3 010 --Establishing a Department of Transportation .
Calendar No. 1627. Report No. 1659. 89th Con^., 2d Sess.,
September 27, 1966.
. Committee on Government Operations. Report to the
President on the Management of Automatic Data Processing
in the Federal Government. Document No. 15, 89th Cong.,
1st Sess., March 4, 1965.
BooksChapin, Ned. An Introduction to Automatic Computers. 2d ed.
u. Van Nostrand Co., Inc., 1963.
Costello, T. W., and alkind, 3. S. Psycholofiy in Administration.
ILnglewood Cliffs: Prentice -Hall, Inc.
81
Fromm, Gary (ed.) Transport Investment and economic Development.W ashington: The Brookings Institution. 1965*
Gregory, Robert H.. and Van Horn, Kichard L. Automatic Data Pro-cessing Systems-- Principles and Procedures, id ed. Belmont:Calif.: Vvadsworth Publishing Co., Inc., 1965.
McCarthy, E. J., and McCarthy, J. A. Integrated Data ProcessingSystems. Edited by D. Humes. New York: John Wiley &.
Sons, Inc., 1966.
Owen, Wilfred. Strategy for Mobility . Washington: The BrookingsInstitution. 1964.
Parkhill, Douglas F. The Challenge of the Computer Utility. Reading,Mass.: Addison-W esley Publishing Co., 1966.
Philips on, Morris (ed.). Automation --Implications for the Future .
New York: Vintage Books, 1962.
Schmidt, Richard N., and Meyers, William E. Electronic BusinessData Processing. New York: Holt, Rinehart and Winston, 1963.
Solomon, Irving I., and W eingart, Laurence O. Management Uses of the
Computer. New York: Harper k Row, Publishers, 1966.
Wolfe, Roy I. transportation and Politics. Princeton: D. VanNostrand Co., Inc., 1963.
Yoshpe, Harry B., and Brown, Fred R. Transportation: The Nation'sLifelines. Washington: Industrial College of the ArmedForces, 1961.
Articles and Periodicals
"A New Cabinet Post is Created, but---," U. S. News and WorldReport. October 24, 1966, p. 12.
Mock, L. R., Jr., "Seven Deadly Dangers in ED?," Harvard BusinessReview. XXXX, No. 3, May-June 1962, pp. 88-96.
"Getting There is Hardly Ever Half the Fun," Time. November 4,
1966, p. 48.
.
82
Leavitt, Harold J. and \vhisler, Thomas L. "Management in the
1980*s." Harvard Business Review. \VI, No. 6,
November -December 1958, pp. 41-48.
Meyer, John R. "Transportation in the Program Budget.** ProgramBudgeting. Ed. Davie Novick. Washington: GovernmentPrinting Office , 1965.
The New York Times . June 1966 -March 1967.
"Untangling the Nation's Difeline." Business week. November lb,
1966, p. HI.
The Washington Post. June 1966-March 1967.
Whisler, Thomas L. "The Manager and the Computer.** The Journalof Accountancy, January 1965.
Unpublished Material
D.Q.T. Task Force, "Concept of Organization,** 1965. (Typewritten.)
. "Designation and Duties of Interagency Task Force.**
BoB Memorandum for VADM Trimble, USCC, Oct. IS, 1966.
_. "Provision of Interim ADP Support.** Memorandum for
Chairman, Support Services Working Group, Dec. 6, 1966.
. "Report on Potential Savings in ADP Activities Resulting
from the Creation of the Department of Transportation.**
March 1966. (Typewritten.)
Other Sources
Bureau of the Budget. Personal Interview with Mr. Clark Renninger,ADP Management Branch, February 3, 1967.
Bureau of Safety, Civil Aeronautics Board. Personal Interviews with
Mr. Albert Goldman, and Mr. Forris Hollowell, January 30, 1967.
Coast Guard. Personal Interviews with CDR D. Lauth, CDR O. Unsinn,LCDR J. Morrow, LCDK K. Palfrey, ENS DeChamps, and
E.NS Wagner, December 1966-February 1967.
83
Department of Commerce, Under Secretary for Transportation, Office
of Transportation Data Systems. 1 ersonal Interview with Mr.Robert Brown, Jan. 25, 1967.
. Office of High Speed Ground Transportation. PersonalInterview with Mr. Robert Haden, Jan. 25, 1967.
Bureau of Public Roads. Personal interviews withMr. K. Kohler, Mr. K. Closs, and Mr. J. Ledford, Jan. 24,
1967.
Federal Aviation Agency. Personal interviews with A. Cowart, M.Francis, T. Grieg, J. Rickard, J. SeiU, and L. Yarnell,January 1967.
General Services Administration. Personal interviews with Mr. RobertBrennan, and Mr. Joseph Flynn, February 8, 1967.
Gill, William A. "Economic Considerations in the Use of
Electronic Computers.'* Talk delivered at the AmericanManagement Association Briefing Session on ComputerI conomics. New York, June 29, 1962.
. "Role of the Systems Engineer in the Federal Government.'1
Talk delivered to the Navy Graduate Financial ManagementClass, George Washington University, February 15, 1967.
Interstate Commerce Commission. Personal Interview with G.Greene, ADP programming staff, Jan. 25, 1967.
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